[Senate Report 108-348]
[From the U.S. Government Publishing Office]



108th Congress 
 2d Session                      SENATE                          Report
                                                                108-348
_______________________________________________________________________
 
                                                       Calendar No. 702

  PROVIDING FOR ADDITIONAL RESPONSIBILITIES FOR THE CHIEF INFORMATION 
 OFFICER OF THE DEPARTMENT OF HOMELAND SECURITY RELATING TO GEOSPATIAL 
                              INFORMATION

                               __________

                              R E P O R T

                                 of the

         COMMITTEE ON GOVERNMENTAL AFFAIRS UNITED STATES SENATE

                              to accompany

                                S. 1230

  PROVIDING FOR ADDITIONAL RESPONSIBILITIES FOR THE CHIEF INFORMATION 
 OFFICER OF THE DEPARTMENT OF HOMELAND SECURITY RELATING TO GEOSPATIAL 
                              INFORMATION




               September 20, 2004.--Ordered to be printed
                   COMMITTEE ON GOVERNMENTAL AFFAIRS

                   SUSAN M. COLLINS, Maine, Chairman
TED STEVENS, Alaska                  JOSEPH I. LIEBERMAN, Connecticut
GEORGE V. VOINOVICH, Ohio            CARL LEVIN, Michigan
NORM COLEMAN, Minnesota              DANIEL K. AKAKA, Hawaii
ARLEN SPECTER, Pennsylvania          RICHARD J. DURBIN, Illinois
ROBERT F. BENNETT, Utah              THOMAS R. CARPER, Delaware
PETER G. FITZGERALD, Illinois        MARK DAYTON, Minnesota
JOHN E. SUNUNU, New Hampshire        FRANK LAUTENBERG, New Jersey
RICHARD C. SHELBY, Alabama           MARK PRYOR, Arkansas

           Michael D. Bopp, Staff Director and Chief Counsel
                Bonnie Heald, Professional Staff Member
      Joyce A. Rechtschaffen, Minority Staff Director and Counsel
                    Kevin J. Landy, Minority Counsel
            Deborah Parkinson, Minority Professional Staff,
     Financial Management, the Budget, and International Security 
                              Subcommittee
                      Amy B. Newhouse, Chief Clerk
                                                       Calendar No. 702
108th Congress
                                 SENATE
                                                                 Report
 2d Session                                                     108-348

======================================================================


  PROVIDING FOR ADDITIONAL RESPONSIBILITIES FOR THE CHIEF INFORMATION 
 OFFICER OF THE DEPARTMENT OF HOMELAND SECURITY RELATING TO GEOSPATIAL 
                              INFORMATION

                                _______
                                

               September 20, 2004.--Ordered to be printed

                                _______
                                

Ms. Collins, from the Committee on Governmental Affairs, submitted the 
                               following

                              R E P O R T

                         [To accompany S. 1230]

    The Committee on Governmental Affairs, to whom was referred 
the bill (S. 1230) to provide for additional responsibilities 
for the Chief Information Officer of the Department of Homeland 
Security relating to geospatial information, having considered 
the same reports favorably thereon with an amendment and 
recommends that the bill, as amended, do pass.

                                CONTENTS

                                                                   Page
  I. Purpose and Summary..............................................1
 II. Background.......................................................1
III. Legislative History..............................................3
 IV. Section-by-Section Analysis......................................3
  V. Estimated Cost of Legislation....................................4
 VI. Evaluation of Regulatory Impact..................................5
VII. Changes in Existing Law..........................................6

                         I. PURPOSE AND SUMMARY

    The Senate Governmental Affairs Committee (the 
``Committee'') approved S. 1230, the Homeland Security 
Geographic Information Act, on July 21, 2004. This legislation 
would create an Office of Geospatial Management under the Chief 
Information Officer in the Department of Homeland Security (the 
``Department'' or ``DHS'') to coordinate the geospatial 
information needs of the Department.

                             II. BACKGROUND

    Geospatial information, which includes maps, charts, remote 
sensing data and images, and aerial photographic images, is an 
integral tool used by most government agencies. According to 
the Government Accountability Office (``GAO''), approximately 
80 percent of all government information has a geospatial data 
component.\1\ Despite the prevalence of geospatial information, 
there is little planning or coordination of geospatial 
activities or procurement at the Federal level. According to a 
2003 study by Cary and Associates, a geotechnology consulting 
firm, the Federal Government procures $5 billion worth of 
geospatial goods and technologies per year.\2\ This figure does 
not include the amount being spent by State and local agencies, 
which some experts estimate is two to three times that of the 
Federal Government.
---------------------------------------------------------------------------
    \1\ Geographic Information Systems: Challenges to Effective Data 
Sharing, Government Accountability Office, GAO-03-874T, June 10, 2003.
    \2\ U.S. Federal Procurement of Geotechnology 2000-2002, Cary and 
Associates, October 2003.
---------------------------------------------------------------------------
    In recent testimony before the House Committee on 
Government Reform, Linda Koontz, Director, Information 
Management Issues, GAO, stated that while the Office of 
Management and Budget has issued requirements regarding 
geospatial coordination, Federal agencies have not consistently 
complied with them.\3\ Ms. Koontz also testified that 
approximately 50 percent of the Federal government's geospatial 
data investment is duplicative.\4\ For example, the Federal 
Emergency Management Agency, which is part of the Department of 
Homeland Security, the United States Geological Survey, and the 
Department of Defense all collect and maintain separate 
elevation data sets.\5\
---------------------------------------------------------------------------
    \3\ Geospatial Information: Better Coordination and Oversight Could 
Help Reduce Duplicative Investments, Government Accountability Office, 
GAO-04-824T, June 23, 2004
    \4\ Ibid.
    \5\ Ibid.
---------------------------------------------------------------------------
    Geospatial information is a crucial component of the 
Department's many missions. According to DHS, geospatial 
information is used for intelligence, law enforcement, first 
response, disaster recovery, and agency management. Geospatial 
technologies provide data that create the maps and charts that 
can help prevent a disaster from occurring or lessen the impact 
of an unforeseeable event by equipping first responders with 
up-to-date information. In the event of a terrorist chemical 
attack or accidental chemical release, knowing which way a 
contaminated plume will travel can save lives. Similarly, the 
damage of a natural disaster, such as a wildfire, can be 
lessened by maps that help predict which areas will be in the 
path of the blaze. Geospatial information also aids everyday 
homeland security activities such as border control by enabling 
Border and Transportation Security officials to monitor border 
activity in remote areas through aerial photography.
    When the Department was created in 2003 it brought together 
components from 22 separate agencies, each of which managed its 
geospatial needs independently. In the past year, the 
Department has encountered significant difficulties integrating 
personnel, financial systems, and computer systems from the 
legacy agencies. Geospatial information has been no different.
    In June 2003, the DHS Chief Information Officer (``CIO'') 
created the position of Geospatial Information Officer 
(``GIO'') to coordinate geospatial policy within the office of 
the CIO. The GIO was tasked with monitoring geospatial policy 
and providing recommendations to the five directorates and the 
Office of the Secretary, but does not have the statutory 
authority to coordinate the Department's geospatial policy and 
activities.
    To empower the Office of the CIO with the necessary 
authority to coordinate the geospatial activities of the 
Department, S. 1230 would create an Office of 
GeospatialManagement (``GMO'') in the Office of the CIO to be run by 
the GIO. S. 1230 gives the GIO the responsibility for ensuring that the 
geospatial needs of the Department are met and is intended to elicit 
cooperation from all the directorates of the Department to achieve this 
goal. The GMO can only have its intended effect if its authority is 
respected by the entire Department.

                        III. LEGISLATIVE HISTORY

    S. 1230 was introduced on June 11, 2003, by Senator Allard 
and was referred to the Committee on Governmental Affairs. On 
July 21, 2004, the Committee considered S. 1230 and ordered the 
bill as amended favorably reported by voice vote. Members 
present were Collins, Lieberman, Voinovich, Specter, 
Fitzgerald, Akaka, Durbin, Carper, and Lautenberg.
    On May 6, 2004, Senator Akaka introduced S. 2390, the 
Homeland Security Geospatial Information Act of 2004, to create 
a DHS Office of Geospatial Management in the Office of the 
Chief Information Officer and for other purposes. Senator Akaka 
offered an amendment to S. 1230 that made the following 
changes: (1) created the Office of Geospatial Management; (2) 
removed language encouraging the use of private sector data; 
(3) replaced the term ``geospatial information'' with 
``geographic information'' to be consistent with the E-
Government Act; and (4) made other technical changes to be 
consistent with the E-Government Act of 2002 and the 
President's E-Government Initiative relating to geospatial 
information. The amendment was cosponsored by Senators Collins 
and Lieberman.
    H.R. 3367, a companion bill to S. 1230, was introduced in 
the House on October 21, 2003, by Representative Sessions and 
was referred to the Committee on Government Reform and the 
Committee on Science.

                    IV. SECTION-BY-SECTION ANALYSIS

Section 1. Short title

    This Act may be cited as the ``Homeland Security Geographic 
Information Act of 2004.''

Section 2. Findings

    This section explains the importance of geospatial 
information to homeland security activities and the 
inadequacies of the current state of geospatial information 
preparedness in the Department and the country as a whole.

Section 3. Homeland security geographic information

    This section creates an Office of Geospatial Management in 
the Office of the Chief Information Officer to be administered 
by the Geospatial Information Officer. The Geospatial 
Information Officer is instructed to assist the Chief 
Information Officer with the following geospatial coordination 
functions: (1) ensuring that the Department has the necessary 
geospatial information for critical infrastructure protection; 
(2) coordinating and leading the geospatial activities of the 
Department; (3) ensuring coordination and interoperability 
among users of geospatial information within the Department to 
prevent unnecessary duplication.
    This section tasks the Chief Information Officer, with 
assistance from the Geospatial Information Officer, with the 
following responsibilities: (1) coordinating the geographic 
information needs and activities of the Department; (2) 
implementing interoperability standards established by the 
Federal Geographic Data Committee (``FGDC'') pertaining to 
homeland security geospatial information, (3) coordinating with 
the FGDC including providing counsel to the FGDC on homeland 
security related issues; and (4) making recommendations to the 
Secretary and the Office of State and Local Coordination and 
Preparedness on grants to fund the creation of geospatial data 
and executing information sharing agreements between the 
Department and other levels of government.

                    V. ESTIMATED COST OF LEGISLATION

                                                 September 3, 2004.
Hon. Susan M. Collins,
Chairman, Committee on Governmental Affairs,
U.S. Senate, Washington, DC.
    Dear Madam Chairman: The Congressional Budget Office has 
prepared the enclosed cost estimate for S. 1230, the Homeland 
Security Geographic Information Act of 2004.
    If you wish further details on this estimate, we will be 
pleased to provide them. The CBO staff contact is Matthew 
Pickford.
            Sincerely,
                                       Douglas Holtz-Eakin,
                                                          Director.
    Enclosure.

S. 1230--Homeland Security Geographic Information Act of 2004

    S. 1230 would amend the Homeland Security Act to require 
the Chief Information Officer (CIO) at the Department of 
Homeland Security (DHS) to establish an Office of Geospatial 
Management to oversee the efficient use and coordination of the 
department's geographic information. In addition, the CIO's 
office would be responsible for leading and coordinating the 
geographic needs of the department's emergency planning and 
critical infrastructure protection efforts.
    CBO estimates that implementing S. 1230 would cost $4 
million in 2005 and $70 million over the 2005-2009 periods, 
assuming appropriation of the necessary amounts. Enacting the 
legislation would not affect direct spending or revenues. S. 
1230 contains no intergovernmental or private-sector mandates 
as defined in the Unfunded Mandates Reform Act (UMRA) and would 
impose no costs on state, local, or tribal governments.
    Estimated cost to the Federal Government: The estimated 
budgetary impact of S. 1230 is shown in the following table. 
The cost of this legislation falls within budget function 800 
(general government).

----------------------------------------------------------------------------------------------------------------
                                                                       By fiscal year in millions of dollars--
                                                                    --------------------------------------------
                                                                       2005     2006     2007     2008     2009
----------------------------------------------------------------------------------------------------------------
                                  CHANGES IN SPENDING SUBJECT TO APPROPRIATION

Estimated authorization level......................................        5       10       15       20       25
Estimated outlays..................................................        4        9       14       19       24
----------------------------------------------------------------------------------------------------------------

    Basis of estimate: For this estimate, CBO assumes that the 
bill will be enacted near the start of fiscal year 2005 and 
that spending will follow historical patterns for similar 
programs.
    DHS currently has a Geospatial Management Office within the 
CIO's office. According to that office, it is working with 
limited authority to coordinate the agency's geospatial 
activities. This work includes surveying the existing 
geospatial capabilities of DHS agencies and emergency 
management needs. Since its inception, the office has spent 
about $1 million to perform its current responsibilities.
    S. 1230 would codify and expand the current duties of the 
CIO's office to provide geographic information and technology. 
This includes all information systems within DHS that involve 
location data including maps. That office would ensure that 
geographic information to plan, prevent, and respond to 
emergencies is available to all DHS agencies, including the 
Federal Emergency Management Agency and the National 
Infrastructure Protection Center. The office also would assure 
the interoperability of the department's geographic information 
systems.
    Based on information from DHS, CBO estimates that the new 
office would eventually need about $25 million a year to carry 
out its responsibilities under S. 1230. CBO expects that the 
office would steadily expand its budget and staff over three to 
four years before it reached that level of effort. We estimate 
that implementing the bill would cost $70 million over the 
2005-2009 period, assuming appropriation of the necessary 
funds.
    Intergovernmental and private-sector impact: S. 1230 
contains no intergovernmental or private-sector mandates as 
defined in UMRA and would impose no costs on state, local, or 
tribal governments.
    Estimate prepared by: Federal Cost: Matthew Pickford: 
Impact on State, Local, and Tribal Governments: Melissa 
Merrell; and Impact on the Private Sector: Paige Piper/Bach.
    Estimate approved by: Peter H. Fontaine, Deputy Assistant 
Director for Budget Analysis.

                  VI. EVALUATION OF REGULATORY IMPACT

    Pursuant to the requirements of paragraph 11(b) of rule 
XXVI of the Standing Rules of the Senate, the Committee has 
considered the regulatory impact of this bill. CBO states that 
there are no intergovernmental or private-sector mandates as 
defined in the Unfunded Mandates Reform Act and no costs on 
state, local, or tribal governments. The legislation contains 
no other regulatory impact.

                      VII. CHANGES IN EXISTING LAW

    In compliance with paragraph 12 of rule XXVI of the 
Standing Rules of the Senate, S. 1230 adds entirely new 
language and, therefore does not change existing law.

                                  
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